I assume that allows this admin user to manage all the attribute (*) including changing userPassword for all users. But it turns out that I still need to set pwdAllowUserChange to TRUE in the default pwdpolicy. But as I understand this password policy controls users changing their own password, not an administrator covered by above ACI. Here I copied from the man page.

pwdAllowUserChange

This attribute specifies whether users are allowed to change their own
passwords or not. If pwdAllowUserChange is set to "TRUE", or if the
attribute is not present, users will be allowed to change their own
passwords. If its value is "FALSE", users will not be allowed to
change their own passwords.